EducationalStatusofPakistanPreandPost18thAmendmentScenarioJamalHaroonSocialPolicyandDevelopmentCentreSPDC24February2021Onlineathttpsmpraubunimuenchende106274MPRAPaperNo106274posted25Feb20210758UT ID: 896527
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MunichPersonalRePEcArchive EducationalStatusofPakistan:PreandPost18thAmendmentScenarioJamal,HaroonSocialPolicyandDevelopmentCentre(SPDC)24February2021 Onlineat https://mpra.ub.uni-muenchen.de/106274/ MPRAPaperNo.106274,posted25Feb202107:58UTC Draft Research Report Educational Status of Pakistan: Pre and Post 18 Amendment Scenario Haroon Jamal Social Policy and Development Centre (SPDC) Karachi February 24, 2021DISCLAIMER: SPDC Research Reports are preliminary versions of research papers that have not been published in a journal or vetted through a peer-review process. The purpose of circulation is to elicit comments and to initiate further debate. The views expressed in these research reports are those of the authors and do not necessarily represent those of the SPDC. PakistanPunjabSindhKPKBalochistan Pre-Amendment3.74.02.94.04.5 Post-Amendment2.22.90.33.82.1 3.74.02.94.04.5 2.22.90.33.82.1 Percent Change in the Composite Index of Access to Education IndicatorsPre and Post 18th Amendments Scenario Educational Status of PakistanPre and Post 18th Amendment Scenario 1 Educational Status of Pakistan: Pre and Post 18 Amendment Scenario Abstract This research empirically evaluates the impact of changes in policy regarding the governance of education system in Pakistan. The Eighteenth Constitutional Amendment Act 2010 has introduced significant changes having direct bearing on the education sector. The devolved system of education, health, and other social sectors because of this amendment, provides strong legislative and financial autonomy to the provinces. In this context, an attempt is made in this research to analyze the performance of provincial governments in terms of five core indicators of educational achievement before and after this amendment. The household data of Pakistan Social and Living-Standard Measurement surveys are employed to compute educational indicators. To summarize the status and growth in the indicators of educational achievement, non-compensatory composite indices are develop
2 ed. The methodology of these indices ens
ed. The methodology of these indices ensures that all indicators have same importance and a full compensation among them is not allowed. The results of this exercise broadly dicate comparatively low growth in the composite values of indicators of educational performance during the post Amendment period, especially in Sindh province. Thus, it may be concluded that the devolution should be revisited to remove the obstacles and to improve its implementation. JEL Classification: I21, I28 Keywords: Education, Non-compensatory Composite Indices, Eighteenth Amendment to the Constitution, Pakistan Educational Status of PakistanPre and Post 18th Amendment Scenario 2 1. Preamble The 18 Amendment to the constitution of Pakistan has reconfigured the federal and provincial U H O D W L R Q V K L S E \ D E R O L V K L Q J W K H ³ F R Q F X U U H Q W O H J L V O D W L Y H O L V W ´ The Act (2010) provides the provinces with strong legislative and financial autonomy in education, health, and other social sectors. The amendment also holds some major implications for the country's system of education A new Article 25A has been inserted in the chapter dealing with the fundamental rights in the Constitution. , W V D \ V ³ 5 L J K W W R H G X F D W L R Qe State shall provide free and compulsory education to all children of the age of 5- \ H D U V L Q V X F K P D Q Q H U D V P D \ E H G H W H U P L Q H G E \ O D Z ´ hrough this amendment in the Constitution, education has become an enforceable right. The caveat, however, remains the wording, µ D V P D \ E H G H W H U P L Q H G E \ O D Z ¶ , W L V X Q I R U W X Q D W H W K D W F X U U H Q W O \ there is no law on the subject. The subordinate legislation must be enacted by the respective provincial legislatures. So far, no effort has been made to table the necessary legislation in any provincial assembly. Various governments have, over the years, formulated an assortment of policies and plans
3 to fulfill the constitutional commitmen
to fulfill the constitutional commitment of providing education and removing inequalities. Success has been limited, though, with the result that the current state of education in Pakistan is deplorable. Education in Pakistan has suffered from myriad issues as reflected by various educational indicators including low levels of public spending, high dropout rates from the schooling system, and more importantly acute gender and regional inequalities. In terms of quality, issues and challenges of the education system include widespread teacher absenteeism, a weak management and supervision structure, shortage of trained and qualified teachers especially female teachers, a lack of dedication, motivation, and interest of teachers in their profession and a lack of physical cilities. These characteristics, in terms of education quality, are more pertinent in public schooling in which about 70 to S H U F H Q W R I W K H F R X Q W U \ ¶ V F K L O G U H Q D U H H Q U R O O H G 0 R U H R Y H U curriculum is mostly outdated and irrelevant, and it does not fulfill the contemporary requirements. Pakistan does not have an official education monitoring report at the national or provincial levels. The Academy of Educational Planning and Management (AEPAM), a body working under the Federal Ministry of Education, releases an annual report called Pakistan Education Statistics to log the condition of education in the country. However, this report does not include an inclusive education monitoring framework. From the civil-society, Annual Status of Education Report (ASER) Pakistan has been monitoring the status of education in Pakistan with a citizen-led household level survey and assessment of children in the age group of 5-16 years from across the country. It is an annual report, publisheby Idara-e-Taleem-o-Aagahi (ITA), which captures the learning outcomes, enrollment status and provision of school facilities in all districts (most all rural) of the country. Alif Ailaan also nonprofit organization working
4 in the field of education in Pakistan s
in the field of education in Pakistan since 2013. Launched by a team of media and communications specialists, the program seeks to highlight education on priority basis in Pakistan and make the masses aware of the importance of education. It runs 1 A summary of key changes in education sector introduced by the 18th Constitutional Amendment is provided in the Appendix- Educational Status of PakistanPre and Post 18th Amendment Scenario 3 campaigns in print, on radio and television, and on social media for awareness of the masses about education. The program conducts seminars and surveys and publishes the highly cited district education ranking report. It also monitors the performance of parliamentarians in reforming education in their constituencies. Alif Ailaan identifies the weak spots in education through research and aims to assist decision makers in creating and implementing better education policies. The federal and provincial governments and the bureaucracy however, do not take the ownership of these research efforts. Using the household level data of Pakistan Social and Living-Standards Measurement (PSLM) surveys, which are collected by the Pakistan Bureau of Statistics, this study provides an applicable monitoring framework. With the release of new wave of PSLM, the recommended indicators and composite indices of this study may be easily followed and updated to monitor the changes in educational achievement. Nonetheless, the prime objective of this research is to empirically assess the impact of devolution in the governance of educational system. To achieve this objective, the educational performance in terms of five core educational indicators before and after the adoption of 18 Amendment is analyzed. These indicators cover not only access to educational opportunities but also include gender and regional parity indices. After describing a brief methodology in the next section, major findings are summarized Section-3, while the district-wise estimated indices and district ranking are c
5 ollated in exhibits furnished in the App
ollated in exhibits furnished in the Appendix-A. Section-4 is reserved for concluding remarks and few policy recommendations. Educational Status of PakistanPre and Post 18th Amendment Scenario 4 2. Methodology and Data 2.1 Indicators Chosen to Assess Educational Performance The goal 4 of the 8 Q L W H G 1 D W L R Q V ¶ Sustainable Development Goals (SDGs) is the education goal. It aims to ³ ( Q V X U H L Q F O X V L Y H D Q G H T X L W D E O H T X D O L W \ H G X F D W L R Q D Q G S U R P R W H lifelong learning opportunities for all by 2030. This goal covers wide ranging aspects of education and learning including quality of teachers, technical and vocational training, facilities available in schools and more importantly literacy assessment and evaluation of childhood development. The SGD document proposes 7 main targets and 11 indicators to estimate baseline and to monitor the progress for this goal. Nonetheless, the necessary data required for measuring majority of UN suggested indicators is not available in the context of Pakistan. The data gap analysis reveals that only 2 out of 11 indicators of SDG-4 may be estimated with the readily available data (Pakistan, 2017). Consequently, the SDG framework could not be applied to measure the status of education in Pakistan for this research. After considering the educational priorities and more importantly nationally representative data availability, five indicators are considered for measuring the status of education in Pakistan at national and subnational levels. In terms of access to schooling two indicators are used: pre-primary enrollment and out of school children in the age cohorts 5-16 years. To monitor educational achievement, literacy rates (10+ years and 15-24 years) and proportion of population with tertiary education are included. One of the key principles of the 2030 global SDG D J H Q G D L V W R D G G U H V V W K H Q R W L R Q ³ O H D Y Lng no one E H K L Q G ´ Thus, to realize the commitment of incl
6 usive development, data disaggregation w
usive development, data disaggregation with respect to vulnerable and left-behind population is essential.Given the importance of disaggregated data, the SDSN (2015) recommends that relevant SDG indicators be disaggregated according to the following broad dimensions: gender, age, income quintiles/deciles, disability, ethnicity, indigenous status, economic activity, location or spatial disaggregation and migrant status. However, besides gender and to some extent spatial disaggregation, currently it is not feasible to estimate the proposed indicators in such details or required level of disaggregation. us, gender and locational (rural-urban) parity indices are developed to evaluate the inequality in the access to education. 2.2 Methodology for Computing Composite Indices While portfolio or dashboard of individual indicators are informative and necessary, there is also a need for a summary measure that combines indicators into a single number which can be quickly grasped. However, one of the issues in the construction of composite indices is the substitutability among component indicators. High achievement for instance, in primary education may be fully compensated or counterweighted with the low level of tertiary education. This situation is not suitable in most cases where a minimum of all components required for a combined index. Therefore, a non-compensatory composite index is developed Z K L F K D V V X P H V µ Q R Q V X E V W L W X W D E L O L W \ ¶ R I W K H L Q G L Y L G X D O L Q Gicators. 7 K L V D S S U R D F K J L Y H V V D P H µ L P S R U W D Q F H ¶ W R D O O indicators and a full compensation among them is not allowed. In a non-compensatory approach, Educational Status of PakistanPre and Post 18th Amendment Scenario 5 all the dimensions of the phenomenon must be balanced and an aggregation function that takes unbalance into account, in terms of penalization, is used. This study follows the methodology developed by Mazziotta and Pareto (2016) to compute a non-compensat
7 ory composite index for spatial comparis
ory composite index for spatial comparisons as well as variant for spati-temporal comparisons. The Adjusted Mazziotta-Pareto Index (AMPI) is a non-compensatory (or partially compensatory) composite index that allows comparability of the data across units and over time. It is a variant of the MazziottaPareto Index (MPI) and is based on a non-linear function which, starting from the arithmetic mean, introduces a penalty for the units with unbalanced values of the indicators. Individual indicators are normalized by a re- V F D O L Q J D F F R U G L Q J W R W Z R µ J R D O S R V W V ¶ L H a minimum and a maximum value which represent the possible range of each variable for all time periods and for all units. Such type of normalization allows to perform absolute comparisons over time. Following steps for calculating AMPI are reproduced from Mazziotta and Pareto (2018). Given the matrix , following normalized matrix is calculated. HF\rF/EJ/=T\rF /EJ Û :s; where /EJ and /=T D U H W K H µ J R D O S R V W V ¶ I R U W K H L Q G L F D W R U M 7 K H µ J R D O S R V W V ¶ F D Q E H I L [ H G V R that 100 represents a reference value. They used a simple procedure for setting the goalposts. Let +JB and be the overall minimum and maximum of the indicator j across all units and all time periods considered. Denoting with 4ABthe reference value for the indicator j, the µ J R D O S R V W V ¶ D U H G H I L Q H G D V /EJ \rL 4AB \rF ¿ /=T \rL 4ABëÝ \rE ¿ where ¿ \rL:5QL\rF +JB; t. The normalid values will fall approximately in the range (70:130), where 100 represents the reference value. Now denoting with and, respectively, the mean and standard deviation of the normalized values of the unit , the generalized form of AMPI is given by ?\rL / \rG 5 :t;where is the coefficient of variation of the unit . If the